老舊石化工業設施的風險性與地方感知：以高雄市大社石化工業區為例

Abstract

大社工業區為 1970 年代北高雄重要的石化產業聚落，支撐南臺灣石化產業的發展。然而大社工業區自起造完工後，大小工安意外不斷，最終居民圍廠抗爭爆發反石化運動歷史上著名的「大社反公害事件」，1993 年經濟部與大社居民達成「2015 年大社工業區與中油五輕同時遷廠」的政治承諾，1998 年「變更大社都市計畫」第三次通盤檢討中，台灣省都市計畫委員會做出「大社工業區應於 2018 年以前降編乙種工業區」的附帶決議。但隨著時間的前進，大社工業區既有沒有遷廠也沒有降編乙種工業區，其中降編決議更成為日後大社降編案的爭議，成為政府、廠商與環團、居民兩造之間論述交鋒的焦點。而大社工業區的處境反映了晚期工業主義（late industrialism）的特徵，除了指出工業設施因為時間推移而老舊化產生物理性的風險，與之相互依存的政治、經濟、社會、法律與論述體系也會因僵化而加劇風險，其中大社居民對於工業區的風險感知沒有受到政府的肯認，產生風險認知上的落差。因此這樣的脈絡下，本研究以地方居民高度關注的課題：空污治理、健康風險、工安意外、大社降編案，藉由晚期工業主義的研究架構從制度、技術、論述、政策脈絡行動者分析治理的結構性問題，以及了解地方的風險感知為何與地方自救會如何回應治理困境的問題。\n\n筆者透過實地的田野調查，訪談大社工業區降編爭議中的利害相關者，並參與空污治理計畫團隊的行動研究，與地方居民針對石化產業聚落空污監測不足的問題，進行立法倡議行動。研究發現內政部都委會專案小組無法針對工業區降編甲種工業區或乙種工業區做出決策，政府相關單位、廠商、環團與居民論述攻防持續多年，呈現治理僵局。但在地居民在行動中凸顯日常生活風險感知的重要性，展現在對揮發性有機化合物的掌握；此外，在風險與制度依存的挑戰下，政策脈絡行動者對於制度、法規、論述、技術與資訊提出治理的觀點，但是實際能否解決石化污染與貼近地方居民的需求，仍有加強、改善的空間。另一方面，筆者所屬的研究團隊將美國南加州空氣品質監測的法規內涵引入，與地方議員、環保團體、在地自救會、專家學者合作，融入地方脈絡的需求共同產製知識，展開立法行動倡議，嘗試補強石化產業聚落的空污監測與公開完整的空污資訊。筆者認為晚期工業主義視角下的大社工業區所呈現的治理困境，政府必須精準辨識地方污染癥結，改善法律規範與政策方向並且投入資源，才得以提升政府治理的能力。

Dashe Industrial Park was an important petrochemical industrial village in North Kaohsiung in the 1970s, supporting the development of the petrochemical industry in southern Taiwan. However, ever since the Dashe Industrial Park was established, many accidents at work and safety have occurred which catalyzed residents’ grievance and eventually led to the "Dashe Anti-Pollution Incident". In 1993, the Ministry of Economic Affairs and residents reached a commitment that the Park and the CPC Naphtha Cracker Section V be relocated in 2015. The Ministry of the Interior made additional decision in 1998 in the third overall review of urban planning that the Park should be downgraded to “type B” industrial zone in 2018. However, Dashe Industrial Park has neither been relocated factories nor been downgraded to type B industrial zone. The resolution of downgrading has become a controversy, and it has become the focus of discussion and confrontation between the government, manufacturers, environmental NGOs and Dashe’s residents. The situation of the Dashe Industrial Park reflects the characteristics of late industrialism. In addition to pointing out the physical risks of industrial facilities becoming old due to the passage of time, the dilapidation of the industrial facilities, the risks have also increased due to the obsolescence, ossification, and politicization of the technical, political-economic, social, and discursive systems. Moreover, residents’ perception of risks in the industrial zone has not been recognized by the government, resulting in a gap in risk perception. Therefore, in this context, this research studies the topics that local residents are highly concerned about: air governance, health risks, working safety ,and downgrading of the Dashe Industrial Park. My thesis applies the framework of late industrialism in understanding the structural problems of governance from the level of system, technology, discourse ,and policy actors , and further, to analyze what local risk perceptions is and how self-help actions could respond to the dilemmas of environmental governance in the late brown economy.\n\nMy fieldwork study have found that the task force on the Urban Planning Commission of the Ministry of the Interior was unable to make a decision on whether to downgrade the Park to Type A or Type B. Related government agencies, manufacturers, environmental groups, and residents have been discussing offenses and defenses for many years, presenting a hung governance. Nevertheless, my study also found that local residents highlighted the everyday risk precepted in their actions, for example, their mastery of volatile organic compounds. My study suggests that policy actors are crucial in pointing out governance views on systems, regulations, discourse, technology and information under the challenge of risk and institutional dependence, though there is still miles to go before the actions bear fruit that fill the needs of the locals. Furthermore, the research team that I participated in introduced the legal connotations of air quality monitoring in Southern California, cooperated with councilors, environmental protection groups, self-help, experts and scholars, and integrated the knowledge of the needs of the local context. We launched a legislative initiative to try to strengthen the air pollution monitoring of petrochemical industrial village and open complete air pollution information. Achieving the perspective of late industrialism, my study concludes that the governance dilemma in the Dashe Industrial Park requires the government to accurately identify local pollution problems, improve legal regulations and policy directions, and invest resources in order to enhance the government`s governance capabilities.